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Joint Waste Development Plan Local Plan/Local Development Framework
London Borough of Barking & Dagenham
London Borough of Havering
London Borough of Newham
London Borough of Redbridge
Joint Waste Development Plan
for the
East London Waste Authority
Boroughs
Adopted February 2012
Joint Waste Development Plan
For further information please refer to your Council’s website:
www.barking-dagenham.gov.uk
www.havering.gov.uk
www.newham.gov.uk
www.redbridge.gov.uk
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Joint Waste Development Plan
Joint Waste Development Plan Introduction
Contents
Page
01 Introduction .....................................................................................................5
What is the Joint Waste Development Plan Document (DPD)?............................5
Who has prepared the Joint Waste DPD?.............................................................5
Borough Local Development Frameworks............................................................6
02 Background .....................................................................................................9
Waste Policy Context.............................................................................................9
Scope of the Joint Waste DPD............................................................................13
Sustainability Appraisal........................................................................................14
03 Strategic objectives ....................................................................................16
04 Future waste management requirements............................................19
How much waste will we need to manage at 2021?............................................19
What facilities will we need?................................................................................20
What waste management technologies and facilities?........................................24
Where should new facilities be located?.............................................................26
05 Policies.............................................................................................................27
06 Monitoring and implementation..............................................................37
Looking ahead.....................................................................................................37
Monitoring............................................................................................................38
Indicators and targets..........................................................................................39
Delivery organisations.........................................................................................41
Schedule 1......................................................................................................43
Schedule 2......................................................................................................45
Abbreviations and Terms .........................................................................46
Appendix 1 Site Plans...................................................................................51
Appendix 2 Schedule of saved and superseded UDP policies.....................57
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Adopted February 2012
Joint Waste Development Plan Introduction
01 Introduction
What is the Joint Waste Development Plan Document (DPD)?
1.1 The Planning and Compulsory Purchase Act 2004 requires local authorities to replace
the existing Unitary Development Plan (UDP) with the Local Development Framework
(LDF). The LDF includes DPDs, which must include specific waste policies which are
consistent with PPS10 and in General Conformity with the London Plan.
1.2 The purpose of the Joint Waste DPD is to set out a planning strategy to 2021 for
sustainable waste management which enables the adequate provision of waste
management facilities (including disposal) in appropriate locations for municipal and
commercial and industrial waste, having regard to the London Plan Borough level
apportionment and construction, excavation and demolition and hazardous wastes.
The Joint Waste DPD forms part of the LDF for each borough and helps deliver the
relevant elements of the Sustainable Community Strategy for each borough.
Who has prepared the Joint Waste DPD?
1.3 The Joint Waste DPD has been developed by the four East London Waste
Authority (ELWA) boroughs of LB Barking & Dagenham, Havering, Newham and
Redbridge. The decision to work together was established through the boroughs’
Local Development Schemes and builds on the positive working relationship already
established between these boroughs as part of ELWA.
Map 1: East London Waste Authority boroughs, Olympic area (LB Newham) and the London
Thames Gateway Development Corporation area
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Adopted February 2012
Introduction Joint Waste Development Plan
Borough Local Plan/Local Development Frameworks
1.4 The Joint Waste DPD is part of each borough’s Local Plan/Local Development
Framework, however it differs from other borough DPDs as it sets waste management
targets and allocates sites suitable for waste development for implementation across
all of the four boroughs. Table 1 below shows borough-specific DPDs prepared or
currently under development. Additional DPDs may also be prepared for each borough
as required.
Table 1: Summary of Development Plan Documents and status for each borough
Borough Documents
• Core Strategy (Adopted July 2010)
• Borough Wide Development Policies DPD (Adopted March
2011)
Barking & Dagenham
• Site Specific Allocations (Adopted December 2010)
• Barking Town Centre Area Action Plan (Adopted February
2011)
• Core Strategy (Adopted, July 2008)
• Site Specific Allocations (Adopted, July 2008)
Havering
• Development Control Policies (Adopted October 2008)
• Romford Area Action Plan (Adopted October 2008)
Newham • Core Strategy (Adopted January 2012)
• Core Strategy (Adopted March 2008)
• Borough Wide Primary Policies DPD (Adopted May 2008)
• Development Sites with Housing Capacity
(Adopted May 2008)
• Development Opportunity Sites (Adopted May 2008)
Redbridge
• Ilford Town Centre Area Action Plan (Adopted May 2008)
• Gants Hill Area Action Plan (Adopted March 2009)
• Crossrail Corridor Area Action Plan (Adopted September
2011)
• Minerals DPD (Submission)
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Joint Waste Development PlanJoint Waste Development Plan Introduction
1.5 All boroughs have an adopted Statement of Community Involvement. The
consultation process for the development of the Joint Waste DPD was consistent with
the requirements as set out in each borough’s SCI.
1.6 Details of other documents referred to throughout this document are detailed below:
• Planning Policy Statement 10: Planning for Sustainable Waste Management
(ODPM, July 2005)
• The London Plan (GLA July 2011)
• Building the Evidence Base and Identifying the Issues & Options
Consultation Document (May 2007)
Technical Report (October 2006)
Sustainability Appraisal Interim Report: An appraisal of the Issues and Options
(May 2007)
Report on Consultation (November 2007)
• Preferred Options
Preferred Options Report (April 2008)
Sustainability Appraisal of Preferred Options (April 2008)
Site Assessment to inform Preferred Options (June 2007)
Sustainability Appraisal of reasonable alternative sites (July 2007)
Preferred Options Technical Report (April 2008)
• Proposed Submission Documents
Proposed Submission Joint Waste DPD
Joint Waste DPD Map
Sustainability Appraisal of the Joint Waste DPD
Technical Report
1.7 The Joint Waste DPD was adopted on the following dates: 19 January 2012
(Redbridge); 1 February 2012 (Havering); 22 February 2012 (Barking and Dagenham);
and 27 February 2012 (Newham).
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Adopted February 2012Joint Waste Development Plan Background
02
Waste Policy Context
Background
2.1 The Joint Waste DPD is influenced by, and needs to have regard to, the relevant
policies, plans and programmes at international, national, regional and local levels. A
summary of the key policies, plans and programmes are detailed below.
EU legislation
2.2 The Waste Framework Directive [75/442/EEC] is the principal EU legislation for
waste and requires measures to ensure that waste is recovered or disposed of without
endangering human health or causing harm to the environment. A key principle of the
directive is the waste hierarchy, with the objective to manage waste as near to the top
of the hierarchy as possible.
The Waste Hierarchy
Reduce
Reuse
Recycling & Composting
Energy Recovery
Disposal
• The most effective environmental solution is often to reduce the generation of waste –
reduce
• Products and materials can sometimes be used again, for the same or a different
purpose – reuse
• Resources can often be recovered from waste – recycling and composting
• Value can also be recovered by generating energy from waste – energy recovery
• Only if none of the above offer an appropriate solution should waste be disposed of
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Adopted February 2012Background Joint Waste Development Plan
National Policy
2.3 The UK Sustainable Development Strategy 1 sets out the overarching approach
to sustainable development. The Waste Strategy for England 2007 was published
following a comprehensive review of Waste Strategy 2000. The key objectives are
to decouple waste growth from economic growth and put more emphasis on waste
prevention and reuse; increase diversion of municipal and non-municipal waste from
landfill; secure investment in waste infrastructure; and to get the most environmental
benefit from the investment through increased recycling of resources and recovery of
energy from residual waste. The Waste Strategy sets national targets for recycling and
composting of household waste and the recovery of municipal waste.
2.4 Planning Policy Statement 10: Planning for Sustainable Waste Management
establishes key planning objectives through which planning authorities should prepare
and deliver their planning strategies. PPS10 recognises that positive planning has an
important role in delivering sustainable waste management through the development
of appropriate strategies for growth, regeneration and prudent use of resources, and by
providing sufficient opportunities for new waste management facilities of the right type,
in the right place and at the right time.
2.5 PPS10 reflects many of the principles of the Waste Framework Directive and requires
waste planning authorities to identify suitable site opportunities for waste management
facilities.
Regional policy
2.6 The London Plan provides the strategic framework for the preparation of local
Development Plan Documents (DPD). The Plan identifies the waste management
facilities required to satisfy the identified need and distribution across the region.
2.7 The London Plan (2011) provides planning policies for waste management which
boroughs must be in general conformity with, including the tonnages of municipal and
commercial and industrial waste to be managed by each London borough, revised
targets for recycling of municipal waste and new targets for recycling of commercial
and industrial waste and recycling or reuse of construction and demolition waste.
2.8 The London Plan encourages the regeneration of east London, concentrating
development in ‘Opportunity Areas’, of which Barking Reach, London Riverside,
Ilford, Lower Lea Valley, Royal Docks and Stratford are located within the ELWA
boroughs. Opportunity Areas are identified on the basis that they are capable of
accommodating substantial numbers of new jobs and/or homes and their potential
should be maximised.
1
Securing the Future - the UK Government Sustainable Development Strategy (March 2005)
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Joint Waste Development PlanJoint Waste Development Plan Background
Adjoining regional or local policy
2.9 It is important for the Joint Waste DPD to take into account the relevant strategies and
plans of adjoining areas. The key waste planning policies from adjoining areas are
detailed below:
Thurrock Core Strategy Issues and Options Consultation
Proposes to reduce the use of landfill including importation of London’s waste to landfill
residues by 2015 and only if landfill capacity is still available. It was favoured by 71% of
respondents. The Essex Waste Development Plan is currently in preparation.
North London Waste Plan – Issues & Options Consultation
Question 4 asks whether North London should identify just enough land to meet its
apportionment or identify more land as good practice for contingency reasons and/or
to achieve a greater level of self sufficiency within North London. If the North London
Waste Plan identifies additional land it may result in a reduced apportionment to East
London boroughs if the London Plan apportionment is reviewed.
Local policy
2.10 Planning Policy Statement 12: Local Development Frameworks recognises the
Local Development Framework as a key component in the delivery of each borough’s
Sustainable Community Strategy and requires Local Development Documents to
express those elements of the Community Strategy that relate to the development and
use of land.
2.11 The preparation of each borough Core Strategy reflects their Sustainable Community
Strategy.
London Borough of Barking & Dagenham
Barking and Dagenham’s Sustainable Community Strategy, The Community Plan
(2009 Agreed Version) has six aims, one of which is to work together for a clean,
green and environmentally sustainable borough. As part of this the Partnership will
be focusing on reducing the amount of waste that goes to landfill and reducing how
much carbon dioxide is released into the environment. The rate of recycling (NI192) in
2008/09 was 25%, increasing to 32% in 2009/10.
London Borough of Havering
Havering’s Sustainable Community Strategy (2008 -2013) states that the Local
Strategic Partnership (LSP) wishes to ensure a clean, safe and green borough. High
recycling rates will reduce the burden we place on landfill and the Council will invest in
new ways of improving recycling rates. The rate of recycling (NI192) in 2007/08 was
23.98%, increasing to 27.37% in 2008/09 and 34.35% in 2009/10.
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Adopted February 2012Background Joint Waste Development Plan
London Borough of Newham
Newham Sustainable Community Strategy (2010-2030) states that the LSP wishes to
help residents and businesses to minimise waste arisings and to recycle in the easiest
and most cost effective way. The Council is examining ways to reduce the amount of
waste produced, improve how it is disposed of and improve access to recycling. The
rate of recycling (NI192) increased from 16% in 2008/9 to 19% between April and
November 2009; the baseline (2007/8) rate was 15%.
London Borough of Redbridge
The Redbridge Sustainable Community Strategy (SCS) (2008-2018) sets an ambition
to promote a positive attitude to the environment and have a cleaner, greener
Redbridge. As part of this ambition the strategy makes a commitment to reduce waste
production and increase recycling. The SCS provides the overarching framework for all
Local Development Documents, and the Joint Waste DPD will assist with the delivery
of its priorities. The 2009/10 AMR showed that the recycling and composting rate in
Redbridge was 31.5%, which was an increase from 26.2% in 2008/09, but below the
40% national target.
2.12 This Joint Waste DPD must be in conformity with borough Core Strategy policies.
Borough Core Strategy policies of specific relevance to the Joint Waste DPD are
outlined below:
Barking & Dagenham
POLICY CR3: Sustainable Waste Management
(Adopted July 2010)
Havering
Policy CP11: Sustainable Waste Management
(Adopted July 2008)
Newham
Policy INF3: Waste and Recycling
(Adopted January 2012)
Redbridge
Strategic Policy 11: Waste
(Adopted March 2008)
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Joint Waste Development PlanJoint Waste Development Plan Background
2.13 The ELWA Joint Waste Management Strategy details how the ELWA boroughs
intend to manage municipal waste.
Joint Waste Management Strategy (ELWA, February 2006)
Scope of the Joint Waste DPD
2.14 PPS10: Planning for Sustainable Waste Management requires the Joint Waste DPD
to set out policies and proposals for waste management in line with the London Plan
and ensure sufficient opportunities for the provision of waste management facilities in
appropriate locations.
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Adopted February 2012Background Joint Waste Development Plan
2.15 It is not necessary for the Joint Waste DPD to repeat or reformulate national or regional
policies, nor to address issues adequately covered in the London Plan or borough Core
Strategies2.
2.16 London Plan Policy 5.17 requires the Joint Waste DPD to identify sufficient land to
provide capacity to manage the apportioned tonnages of municipal solid waste (MSW)
and commercial and industrial (C&I) waste. Waste is deemed to be managed in London
if it is used for energy recovery in London, or it is compost or recyclate sorted or bulked
in London material recycling facilities for reprocessing either in London or elsewhere.
2.17 Although the London Plan borough level apportionment does not include construction,
excavation and demolition waste (C, D&E) or hazardous waste streams, these are
addressed in London Plan Policy 5.18 and as such are included in the Joint Waste DPD.
2.18 Further detail of these waste streams and their future management is in Chapter 4 of
this document.
Sustainability Appraisal
2.19 Each stage in the preparation of the Joint Waste DPD has been subject to
Sustainability Appraisal, as required by Section 5a and 5b of the Planning and
Compulsory Purchase Act, the Environmental Assessment of Plans and Programmes
Regulations 2004 and incorporating the requirements of EU Directive 2001/42/EC on
the Assessment of the Effects of Certain Plans and Programmes on the Environment
(commonly referred to as the Strategic Environmental [SEA] Directive). The
Sustainability Appraisal documents form part of the evidence base to this DPD. The
key recommendations of the Sustainability Appraisal are summarised below:
Sustainability Appraisal Recommendations
• Encourage the reduction, reuse and recycling of waste produced by the
construction industry
• Secure an appropriate range of facilities for the management of waste
• Allocate sufficient resources to waste issues
• Help facilitate the provision of ongoing education and practical advice
relating to waste
• Take into account proposals for an additional 54,000 new dwellings in the
Thames Gateway London area
• Include sustainable transport factors – particularly encouraging the
movement of waste by rail and water – in site assessment for facilities
• Consider environmental separation buffers around suitable sites for waste
management facilities
Source: From Table 2.1: Key Messages from the Context Review, Sustainability Appraisal of the Joint
Waste DPD Preferred Options, April 2008
2
PPS12: Local Spatial Planning (2008) paras 4.30 and 5.1
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Joint Waste Development PlanJoint Waste Development Plan Background
2.20 The Sustainability Appraisal of Preferred Options3 tested the DPD objectives, policies
and identified sites against the Sustainability Framework. The Appraisal suggested
mitigation measures which were incorporated into the development of this Proposed
Submission Document. A Final Sustainability Appraisal specifically relating to the
Proposed Submission Joint Waste DPD was also produced.
Note: A Habitats Regulations Assessment of the Joint Waste DPD was undertaken to
determine whether the DPD will effect European biodiversity designations. The HRA
was developed in consultation with officers at Natural England.
3
Joint Waste DPD Preferred Options – Sustainability Appraisal Report (Scott Wilson Ltd with Land
Use Consultants, April 2008)
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Adopted February 2012Strategic Objectives Joint Waste Development Plan
03
3.1
Strategic Objectives
The evidence base revealed that there is a need to provide additional waste treatment
capacity within the ELWA area to manage waste without endangering human health
or the environment and to enable communities to take responsibility for the waste
produced.
Vision Statement
The vision for the East London Joint Waste Development Plan Document
is that it aims to manage waste produced in the boroughs of Barking and
Dagenham, Havering, Newham and Redbridge in line with the growth set out
in the boroughs’ adopted and emerging Local Development Framework Core
Strategies. It responds to East London’s location within two Growth Areas
(Thames Gateway and London-Stansted-Cambridge-Peterborough corridor),
and identifies required levels of waste management capacity which can be
delivered by 2021.
The production of waste will be minimised, recycling and composting will be
increased, and substantial reductions in the use of landfill will be achieved.
This will be done in the unique context of East London, which is self-sufficient
by having facilities in place to deal with its own waste. Boroughs will work
with the Mayor of London to deliver his aspiration that no untreated waste will
go directly to landfill, as set out in London’s emerging Waste Strategy. The
Joint Waste Plan will deliver sustainable development by addressing waste
as a resource without endangering health or harming the environment. In
dealing with waste, boroughs will ensure that well designed, high quality waste
facilities are developed, including the promotion of green industries, which
integrate with and complement opportunities for regeneration across East
London.
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Joint Waste Development PlanJoint Waste Development Plan Strategic Objectives
3.2 The Joint Waste DPD Objectives, as developed throughout the planning process, are
to:
A) Deliver sustainable development by driving waste management up the waste
hierarchy, addressing waste as a resource and looking to disposal as the last
option, while recognising that disposal must be adequately catered for;
B) Work towards meeting targets set out in the Waste Strategy for England 2007, and
the London Plan;
C) Enable the provision of a range of waste technologies;
D) Enable the provision of facilities to allow for net self-sufficiency in the ELWA
boroughs in accordance with the London Plan;
E) Enable waste to be managed in one of the nearest appropriate installations without
endangering health or harming the environment;
F) Integrate waste planning with other spatial concerns, including regeneration plans;
G) Reverse the historical trend of the ELWA area being the dumping ground for
London’s waste; and
H) Encourage our communities to take more responsibility for their waste.
3.3 In addition to relevant European, national and regional policy, these objectives
have also been developed to encompass the relevant principles from the borough
Sustainable Community Strategies, Core Strategies and targets from the adopted
Joint Waste Management Strategy. Implementation of these objectives will require
action from the whole community, including producers, retailers, consumers, local
authorities and the waste management industry – waste management is everybody’s
responsibility.
3.4 The Borough Core Strategies each contain a strategic waste policy which sets the
framework for the Joint Waste DPD including:
• encouraging movement up the waste hierarchy
• suitable locations for waste management facilities
• help deliver targets for recycling and composting
• regard to the London Plan apportionment
• Joint Waste DPD to identify amount of waste to be managed, the range and type
of facilities needed, sufficient land to manage waste apportionment and suitable
locations for these facilities.
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Adopted February 2012Joint Waste Development Plan Future Waste Management Requirements
04 Future Waste Management
Requirements
How much waste will we need to manage at 2021
4.1 The determination of how much waste will need to be managed by the ELWA boroughs
was debated through previous public consultation. The London Plan identifies the
borough level apportionment of municipal solid waste (MSW) and commercial and
industrial waste (C&I) to be managed. The apportionment for each ELWA borough is
pooled for the purpose of this Joint Waste DPD.
4.2 The London Plan borough level apportionment does not include construction,
excavation, demolition waste (C,E&D) or hazardous waste. Forecast scenarios
and variables for construction and demolition waste and hazardous waste were
consulted on at the Issues and Options stage and inclusion of these waste streams in
the Joint Waste DPD are supported by representations received.
4.3 Graph 1 below show the tonnages of these waste streams to be managed by the
ELWA boroughs to 2021. Municipal solid waste and commercial and industrial
waste tonnages are as per London Plan (Consolidated with Alterations since
2004) Table 4A.6.4 Construction, excavation and demolition waste and hazardous
waste projections for the ELWA boroughs are as set out in the Issues and Options
Consultation Document.
Graph 1: Waste volumes projected to be managed by the ELWA boroughs
2000000
1500000
Tonnes
1000000
500000
0
2009/10 2014/15 2019/20
C, E & D forecast C & I (London Plan 2008 Table 4A.6) MSW (London Plan 2008 Table 4A.6) Hazardous waste forecast
4
The projections for municipal solid waste and commercial and industrial waste have been reduced in
the latest version of the London Plan which was published in July 2011.
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Adopted February 2012Future Waste Management Requirements Joint Waste Development Plan
What facilities will we need?
4.4 Taking into account the reduced apportionment in the London Plan (2011) the ELWA
boroughs will need to provide sufficient waste management capacity for:
• 1.573 million tonnes of MSW and C&I waste at 2021
• 1.267 million tonnes of C,E&D waste at 2021; and
• 0.095 millions tonnes of hazardous waste at 2021.
4.5 A detailed list of current recycling, composting, recovery, disposal and transfer waste
management facilities in the ELWA boroughs and individual annual permitted tonnages
is included in the Joint Waste DPD Technical Report. A summary of the relevant
facility types and their estimated capacity is shown in Table 2 below.
Table 2: Existing waste management capacity in the ELWA area
Annual
Number of Estimated actual
Facility type permitted
facilities capacity (75%)
tonnage
A13 – Household Waste Amenity Sites
4 167,050 125,288
(Reuse and Recycling Centres)
A15 - Material Recycling Treatment
10 950,500 712,875
Facility
A20 – Metal Recycling Sites 5 488,080 366,060
A22 - Composting Facility 2 202,000 151,500
A16 - Physical Treatment Facility 3 174,000 130,500
A17 - Physico-Chemical Treatment
1 90,000 67,500
Facility
A23 - Biological Treatment Facility 2 193,080 145,080
A11 – Household, Commercial and
23 3,252,833 2,439,625
Industrial Waste Transfer Station
A18 – Incineration (Clinical Waste) 1 7,000 5,250
A09 – Special Waste Transfer Station 6 470,627 352,970
A12 – Clinical Waste Transfer Station 3 6,040 4,250
A14 – Transfer Station taking Non-
2 280,800 210,600
Biodegradable Wastes
A05 – Landfill taking Non-Biodegradable
6 866,000 649,000
Wastes
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Joint Waste Development PlanJoint Waste Development Plan Future Waste Management Requirements
4.6 Waste management facilities that do not count toward meeting the capacity required
to manage MSW and C&I wastes include transfer stations and landfill as these options
do not support recycling. Vehicle dismantlers are also not included as it is a transfer-
type operation. The existing capacity of ELWA’s four Reuse and Recycling Centres
is included as 50% of the annual permitted tonnage as this is the percentage of waste
that is currently recycled or composted at these sites (as opposed to RRCs operating
as transfer stations). As with all the other facilities (see paragraph 4.7 below), the Joint
Waste DPD Technical Report then applies an actual throughput of 75% of this existing
capacity at ELWA’s four Reuse and Recycling Centres (i.e. 75% of 50% of the annual
permitted tonnage). As almost all C,E&D waste is inert it is appropriate to include
Landfill taking Non-Biodegradable (i.e. inert) waste.
4.7 It is generally accepted that most facilities are licensed for a throughput in excess of
what they achieve in practice. As there is considerable uncertainty surrounding actual
throughput and little available data, the Joint Waste DPD Technical Report uses an
estimate for actual throughput of 75% of maximum available capacity to maintain
consistency with data used in the London Plan.
4.8 The number and mix of facilities that will be required within the ELWA area is
dependent not only on the amount of waste that will require treatment but also how it
is treated. The Waste Strategy for England 2007 establishes the following targets for
waste management:
Table 3: Target MSW, C&I and C,E&D recovery, composting and recycling to 2020
MSW C&I C,E&D
Composting
Composting
Composting
Composting
Recycling &
Recycling &
Recycling +
Recycling
Recycling
recovery1
recovery
Reuse
Other
Total
2010 27% 13% 40% 13% 53% 38% 18% 56% -
2015 30% 15% 45% 22% 67% 43% 21% 64% -
2020 33.5% 16.5% 50% 25% 75% 47% 23% 70% 95%
Note 1 ‘Recovery’ means to obtain value from waste through one of the following means:
• Recycling
• Composting
• Other forms of material recovery (such as anaerobic digestion)
• Energy recovery (combustion with direct or indirect use of the energy produced,
manufacture of refuse derived fuel, gasification, pyrolisis, or other technologies)
Source: Waste Strategy 2000 for England and Wales, DETR May 2000.
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Adopted February 2012Future Waste Management Requirements Joint Waste Development Plan
4.9 These targets highlight a commitment to drive waste management up the waste
hierarchy and divert more waste from landfill and are endorsed in the National Waste
Strategy 2007 and the London Plan.
4.10 In addition to the targets established in the Waste Strategy 2000 and the London Plan,
the ELWA boroughs have planned on the basis of that waste which is not recycled or
composted being recovered and therefore no waste going to landfill. Based on this
approach for the management of waste in the ELWA area, and the existing waste
management capacity in the ELWA boroughs (as detailed in Table 2) the ELWA
boroughs need to provide capacity as summarised in Table 4 below in order to manage
the apportionment of MSW and C&I waste in the London Plan (2011). A detailed
explanation and spreadsheet of these calculations is included in the Joint Waste DPD
Technical Report.
Table 4: Summary of average capacity surplus/deficit within the ELWA boroughs required to
meet the London Plan (2011) apportionment for MSW and C&I waste.
Waste management route Capacity Required
2011 2016 2021
Recycling (MSW and C&I) 786,203 tpa 674,313 tpa 415,428 tpa
Composting (MSW and C&I) -47,440 tpa -109,170 tpa -320,255 tpa
Recovery (all facilities) -262,710 tpa -256,090 tpa -269,370 tpa
Note 1 A deficit, or future capacity requirement, is shown in bold with a minus sign in front. Surplus
capacity is shown in italic text.
Note 2 Table 4 is based on the assumption of 75% capacity utilisation of existing facilities (refer to
paragraph 4.7)
4.11 The 2011 London Plan figures are lower than in the previous London Plan
(consolidated with alterations since 2004) and have resulted in increased flexibility
within the Joint Waste DPD in terms of site deliverability. Such flexibility recognises
that in some cases a site may not come forward or be required to meet the
apportionment during the plan period. Site delivery and capacity requirements will be
monitored extensively through LDF Annual Monitoring Reports. Where it is apparent
that surplus capacity has been identified it may be necessary to put back the delivery
of a waste management facility to a later five year period, or review its allocation in the
DPD and seek an alternative use. As set out in Policy W2, sites will only be approved
where they are needed to contribute to meeting the London Plan apportionment figures
for the ELWA boroughs, and capacity sought only where there is an identified need.
4.13 Construction, excavation and demolition waste: It is estimated that a large portion
of recycling and reuse of construction, excavation and demolition waste currently
occurs on site rather than in designated licensed facilities, or is transferred out of
London through inert transfer stations. As such it is not considered that additional
permanent new C,E&D recycling facilities are required.
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Joint Waste Development PlanJoint Waste Development Plan Future Waste Management Requirements
4.14 As an alternative to allocating sites for C,E&D recycling facilities, Joint Waste DPD
Policy W1 encourages the reuse of C,E&D waste at or near to construction sites with
on-site recycling wherever possible. There is increasing opportunity for the use of
recycled aggregate (sourced from a variety of construction, excavation and demolition
wastes) in a wide range of applications within the construction industry, and as a result
of landfill legislation changes, on-site remediation of contaminated soils is increasing.
Additionally, Policy W4 ensures that the potential benefits of landfilling inert C,E&D
waste are maximised.
4.15 Hazardous waste: The Study of Arisings and Management of Non-Municipal Wastes
in the ELWA area (ERM, 2005) considered it not appropriate for the ELWA boroughs
to aim for self-sufficiency in the management of hazardous waste or to allocate specific
sites suitable for hazardous waste management due to the variety and nature of
hazardous wastes and the specialist management techniques and facilities required.
This is supported by Policy 5.19 of the London Plan which states that the Mayor will
work with the Boroughs, the Environment Agency and industry to provide and maintain
direction on the need for hazardous waste management capacity.
4.16 The London Plan, Spatial Development Strategy for Greater London (Greater London
Authority, 2011) noted that in 2007 around 300,000 tonnes of hazardous waste was
produced in London, 35% from C&D waste (containing asbestos and contaminated
soil), 21% from oil and oil/water mix waste, and 44% from chemical and other industrial
processes. There are no figures for hazardous waste on an individual borough basis;
however with 32 boroughs and the City, the individual tonnages generated in each
are likely to be low. The types of hazardous waste arising in the ELWA area include
such materials as televisions, computer monitors and fluorescent lighting (classified
as hazardous wastes under the Hazardous Waste Directive list of wastes); thus
households and businesses will also contribute towards hazardous waste arisings.
Some hazardous waste can be reused, recovered or recycled – such as solvents,
oils and metals. Others are incinerated or sent to landfill – however there are fewer
landfill sites able to accept hazardous waste since implementation of the Landfill
Directive in 2004. Whilst the London Plan recognises that there is a need to identify
hazardous waste capacity for London’s hazardous waste, due to the nature and
quantities of this, the London sub-regions are unlikely to be self-sufficient. Detailed
data on hospital/health care wastes across the ELWA area is not available. Current
estimates from health service colleagues indicate that Newham General Hospital
for example generates around 850 tonnes of waste p.a. – of which 380 tonnes are
clinical waste and 380 tonnes general ‘black bag’ waste. Seventy tonnes of general
waste is currently recycled – primarily card and paper – more recycling is planned,
with the aim of recycling 50% of the domestic waste stream. Very little waste now
requires incineration – e.g. the approximate clinical waste arising from health centres
within Barking and Dagenham is 46 tonnes p.a. – of which some 2-3 tonnes require
incineration. In Havering, St. George’s Hospital generates approximately 22 tonnes
p.a. of clinical waste.
4.17 The definition of hazardous waste includes substances that commonly make up
household, commercial and industrial construction (including Waste Electrical and
Electronic Equipment) and construction, excavation and demolition waste streams
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Adopted February 2012Future Waste Management Requirements Joint Waste Development Plan
(including asbestos and contaminated soils). Whilst London Plan Policy 5.19 states
that Development Plan Documents should make provision for hazardous waste
treatment plants to achieve, at a regional level, the necessary waste management
requirements, there is no definition of such facilities. Any application for a waste
management facility that manages hazardous waste would be determined in
accordance with the policies of this Joint Waste DPD.
4.18 The existing hazardous waste management capacity within the area is listed in Table 2
- special waste [470,000 tpa] and clinical waste [6,000 tpa] transfer stations and clinical
waste incineration [7,000 tpa]. On-site soil treatment facilities, including temporary
facilities, provide additional capacity. While just the recovery (incineration) capacity is
classified as ‘treatment’, special waste transfer stations play an important role in the
storage and reprocessing of hazardous waste streams, especially as the Hazardous
Waste Directive and Regulations require more sophisticated levels of separation of the
different categories of hazardous, non-hazardous and inert waste.
4.19 Electrical equipment: The Waste Electrical and Electronic Equipment Directive
(WEEE) aims to minimise the impacts of electrical and electronic equipment on the
environment during their lifetime and when they become waste. The Directive applies
to a wide range of products including fridges, washing machines, TVs, computers,
fluorescent tubes and electronic games/toys and encourages and sets criteria for the
collection, treatment, recycling and recovery of waste equipment. All four of ELWA’s
Reuse and Recovery Centres are Designated Collection Facilities (DCFs) which
separate and recycle used electrical equipment with a current recycling rate in excess
of 90% by weight.
What waste management technologies and facilities?
4.20 A range of facilities, including type, size and mix of technologies, will be necessary
to meet the overall capacity requirements. Recycling, composting, recovery and
processing facilities cover a range of technology types that will have specific site
characteristics. A summary of existing and emerging waste technologies is set out
below:
Materials Recycling Facility / Material Recovery Facility (MRF)
An MRF is designed to process source separated or co-mingled dry recyclables into
individual materials prior to despatch to reprocessors who prepare the materials for
manufacturing into new recycled products. The MRF is made up of a series of conveyor
belts and a mix of manual and automatic machines to separate the materials and remove
any items that can be recycled.
In-vessel composting (IVC)
In-vessel composting is used to cover a wide range of composting systems, all of which
feature the enclosed composting of biodegradable material, therefore allowing a higher
degree of process control. They are usually categorised into five types: containers, silos,
agitated bays, tunnels, and enclosed halls. Many IVC systems involve the forced aeration
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Joint Waste Development PlanJoint Waste Development Plan Future Waste Management Requirements
of the feedstock and capture and manage process air to reduce potential nuisance, such
as odour. The enclosed nature of these facilities allows for the further control of nuisance,
including noise and dust. The compost produced is far more stable and sanitary than the
biodegradable MSW input. Moreover, the material may be screened into particle sizes
suited to its end-use, and may be blended with other materials, such as sand, to produce
artificial topsoil.
Open-air composting
Open-air composting has quite different land use implications from other waste
management techniques. The process involves mechanical turning of shredded
biodegradable waste to enable effective degradation. Open windrow composting
operations can take place outdoors or using minimal buildings and as such the operations
are comparable to agricultural practices and may therefore be appropriate to locate in the
open countryside or Green Belt. These facilities would not normally be compatible with a
hi-tech business park or urban setting.
Mechanical Biological Treatment (MBT)
Mechanical biological treatment is a generic term for the integration of several processes
commonly found in other waste management technologies, including MRFs, sorting and
composting plants. A common aspect of all MBT plants used for MSW is to sort mixed
waste using a range of techniques, including hand picking, mechanical sorting and
magnetic separation, and to extract materials for recycling. The biological element of the
process can take place prior to or after sorting. MBT plants can incorporate a number
of different processes in a variety of combinations, with the exact mix of technologies
determined by the objectives of the plant.
Anaerobic digestion (AD)
Anaerobic digestion is a biological treatment where biodegradable wastes are converted
to a ‘digestate’ (containing biosolids and a liquid) and biogas. The waste is decomposed
by bacteria in the absence of air – a key difference from composting processes.
Biodegradable waste is broken down in an enclosed vessel under controlled conditions.
The methane rich biogas released during this process can be collected and burnt as a fuel
to generate electricity.
Advanced Thermal Treatment (ATT)
Advanced thermal treatment is a general term primarily used for waste management
technologies that use pyrolysis or gasification to process waste and generate power
(and often to recover heat). ATT excludes the conventional incineration of waste. Within
the ELWA area, a proposal for advanced thermal treatment (excluding conventional
incineration) will be considered where the development will recover energy, and where it
can be demonstrated that waste to be treated in this way cannot practically and reasonably
be reused, recycled or processed to recover materials. This will ensure that the thermal
treatment plant does not ‘crowd out’ other technologies with the potential for recycling or
otherwise gaining benefit from the waste prior to its thermal treatment. Opportunities to
include provision for Combined Heat and Power (CHP) and Combine Heat Power and
Cooling (CHPC) will be supported.
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Adopted February 2012Future Waste Management Requirements Joint Waste Development Plan
C,E&D Recycling
Temporary C,E&D recycling facilities can potentially be located on development sites for
the reprocessing of a range of C,E&D wastes (including concrete, tiles, brick and asphalt)
into recycled aggregate for use in the construction industry. Further details are available at
www.aggregain.org.uk (part of the WRAP Aggregates Programme).
C,E&D waste recycling and processing facilities can also be co-located on mineral sites.
Broadly, the materials are similar in nature, as are the general processes that both C,E&D
waste and raw materials undergo (including screening and grading of material, crushing
and breaking), and there are potential transport-related savings through the use of heavy
goods vehicle movements delivering C,E&D waste and removing minerals or secondary
aggregate. Permissions granted for C,E&D waste management facilities on mineral
extraction sites will be temporary and restricted to the operational life of the mineral site.
Where should new facilities be located?
4.21 In accordance with PPS10, the London Plan and borough Core Strategy policy, the
Joint Waste DPD identifies sites suitable for recycling and waste treatment facilities.
The process for determining these sites has been documented throughout the
development of this document and has been influenced by representations received.
4.22 The suitability of a site for a waste facility was based on criteria consistent with PPS10,
the London Plan and sustainability objectives. Full details of the methodology used for
the assessment of potential sites for waste management uses, as well as the findings
of the site assessment and recommendations for preferred sites to be included in the
Joint Waste DPD can be found in the Site Assessment to inform Preferred Options
report5 .
4.23 The site assessment procedure also considered the typical characteristics of modern
waste management techniques and facilities and key local issues associated with the
operation of each process.
5
East London Joint Waste DPD – Site Assessment to inform Preferred Options. Prepared by Land
Use Consultants and Environmental Resources Management Ltd, June 2007.
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Joint Waste Development PlanJoint Waste Development Plan Policies
05 Policies
Policy W1: Sustainable Waste Management
The boroughs will aim to drive waste management up the waste hierarchy by promoting waste
minimisation, materials reuse, recycling & recovery of resources and help the delivery of
national and regional targets for recycling and composting set out in the Waste Strategy for
England 2007 and the London Plan by:
(i) working in partnership with the general public and the business community in the ELWA
area to provide information and advice and raise awareness;
(ii) working in partnership with local community and voluntary groups and social enterprises to
encourage waste minimisation, materials reuse, recycling and recovery of resources;
(iii) ensuring that developers and contractors design new housing, commercial and other
developments to maximise opportunities for future occupiers to minimise, reuse, recycle
and recover resources from waste, by providing adequate space and facilities for storage
and handling of segregated waste; and
(iv) require the reuse of construction, excavation and demolition waste during new
developments, such as the Thames Gateway, with on-site recycling and use of recycled
aggregate wherever possible and encourage use of sustainable transport modes where the
movement of waste is necessary.
Justification
5.1 The objective of the Waste Framework Directive is to manage waste as near to the
top of the waste hierarchy as possible with European, national and regional policies
placing increasing emphasis on waste reduction. Achieving these objectives will
require a concerted effort to decouple waste growth from economic growth, which
will need a change in producer and consumer behaviour and current patterns of the
manufacture and consumption of goods. There is increasing pressure both nationally
and regionally for business to take the lead, especially with regard to packaging waste.
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Adopted February 2012Policies Joint Waste Development Plan
5.2 The agreed targets for the Joint Waste DPD intend to deliver sustainable waste
development (Preferred Objective A) and are consistent with the Waste Strategy for
England 2007 and the London Plan (2011).
These are:
• Recycling & Composting of MSW - 40% by 2010, 45% by 2015, 50% by 2020
Waste Strategy for England (2007, page 11)
• Recovery of MSW - 53% by 2010, 67% by 25, 75% by 2020
Waste Strategy for England (2007, page 11)
• Recycling and composting of C&I - 70% by 2020
London Plan 2011 Policy 5.16 (Waste Self-Sufficiency)
• Recycling and reuse of C,E&D - 95% by 2020
5.3 Achieving these targets will require investment in new infrastructure and technologies
to treat the wastes generated within the ELWA area. Efforts will extend to the
commercial and industrial (C&I) and construction, excavation and demolition (C,E&D)
waste streams. The ELWA boroughs will be supportive in generating, and encouraging
others to generate, markets for recycled materials through working with public
organisations, as well as local privately funded initiatives. Other approaches include
adopting green procurement practices and encouraging the use of recycled aggregate
in the construction industry.
5.4 The Joint Waste DPD encourages the development of new and emerging advanced
conversion technologies for waste. Such technologies might include recycling,
composting, mechanical biological treatment, anaerobic digestion and gasification/
pyrolysis, and where appropriate the co-location of these facilities to form resource
recovery parks will be supported. By not prescribing preferred waste management
technologies the Joint Waste DPD will maintain flexibility and allow industry to bring
forward appropriate development proposals.
5.5 For proposed facilities lower down in the waste hierarchy, applicants will be expected
to demonstrate satisfactorily how their proposals integrate into the sustainable
approach to waste management sought by the ELWA boroughs. Their proposals must
take into account any opportunities for treatment of waste further up the hierarchy.
New and innovative approaches to waste management will be supported where
benefits are demonstrated.
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Joint Waste Development PlanJoint Waste Development Plan Policies
Policy W2: Waste Management Capacity, Apportionment & Site Allocation
The London Plan identifies the amount of municipal and commercial waste to be managed by
the ELWA boroughs as 1,228,000 tonnes at 2011; 1,395,000 tonnes at 2016 and 1,573,000
tonnes at 2021. The ELWA boroughs will meet this apportionment by:
(i) Safeguarding the capacity of existing waste management facilities listed in
Schedule 1 and encouraging increased processing of waste at these facilities, to
run at a higher figure towards the licensed capacity; and
(ii) Approving strategic waste management facilities where it will contribute to the ELWA
boroughs meeting the London Plan apportionment on sites within the locations listed in
Schedule 2.
Where the applicant can demonstrate there are no opportunities within these preferred areas
for a waste management facility, sites within designated industrial areas as identified in borough
Local Development Frameworks will be considered.
Planning permission will only be granted for new waste water and sewage treatment plant,
extensions to existing works, or facilities for the co-disposal of sewage with other wastes,
where development is either needed to treat waste arisings from within the East London Waste
Authority area or in the case of arisings from elsewhere the need cannot practicably and
reasonably be met at another site – subject to the relevant borough’s policy/guidance and Policy
W5 of this Plan. Wherever practical and economical, renewable energy generation will be
encouraged as part of such waste management facilities.
In all cases applications will be required to meet the relevant borough design guidance and
Policy W5.
Justification
5.6 PPS10 requires that the Joint Waste DPD identifies sites and areas suitable for the
waste management facilities that support the apportionment as set out in the London
Plan.
5.7 The loss of existing waste management capacity or suitable sites for future facilities
to other development pressures will make waste recycling, diversion and recovery
targets harder to achieve. PPS10 recognises that all local planning authorities
have a responsibility to consider the impact of other development on existing waste
management facilities and on sites and areas allocated for waste management. The
London Plan requires that existing waste management sites should be safeguarded,
unless appropriate compensatory provision is made. It is deemed that the sites listed
in Schedule 1 and Schedule 2 satisfy this.
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Adopted February 2012Policies Joint Waste Development Plan
5.8 The Councils recognised that before all the sites in Schedule 2 are operational it will
need to treat carefully proposals which involve the loss of existing waste management
facilities that are not safeguarded. This is necessary to ensure there remains sufficient
capacity in place to meet the apportionment. The Councils will require appropriate
compensatory provision to be made where this is not the case.
5.9 A detailed explanation of the calculations of how the apportioned waste will be treated
(as per the targets for municipal and commercial and industrial waste), existing
capacity of existing waste management facilities in the ELWA boroughs, and new
capacity which the Joint Waste DPD must plan for is included in the Joint Waste DPD
Technical Report. Table 5 summarises the capacity required and estimated land take
that may be required to provide this capacity.
Table 5: Summary of average capacity required within the ELWA boroughs and land area
required to meet the London Plan apportionment for MSW and C&I waste
Waste management route Capacity Required Land area required
47,440 tonnes at 2011 3 – 6ha
Composting (MSW and C&I) +61,730 tonnes at 2016 4 – 12ha
+211,085 tonnes at 2021 6-12ha
262,710 tonnes at 2011 3-5ha
Recovery (all facilities) -6,620 tonnes at 2016 0ha
+ 13,280 tonnes at 2021 1ha
5.10 Schedule 2 identifies a number of areas within which potentially available and suitable
sites for waste management facilities can be located. These areas represent a
refinement of the broad locations identified in the London Plan and borough Core
Strategies. This builds flexibility into the Joint Waste DPD and the boroughs are
confident that sufficient opportunities will arise within these areas.
5.11 Each of the identified sites was considered in the context of the type of waste treatment
technology that could be suitable on that site based on the typical characteristics and
key local issues published in Planning for Waste Management Facilities and Recycling
and Recovery Facilities.
5.12 The sites identified in Schedule 2 provide sufficient potential capacity to manage
the tonnages of waste presented above. In considering the need for development,
the ELWA boroughs will have regard to the remaining capacity of existing facilities,
as well as other permitted waste facilities. It is important that the ELWA boroughs
work together to ensure that new development does not constrain land that has been
safeguarded for waste management facilities.
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Joint Waste Development PlanJoint Waste Development Plan Policies
5.13 There is an established network of sewage facilities within East London, but upgrades
may be required during the Plan period and this may involve new development. As
the Landfill Directive introduces a ban on the disposal of liquid to other landfill facilities,
this may result in additional pressure to find available space within operational sewage
treatment plants to manage liquid wastes that were previously disposed of through
landfill. Sewage treatment plants may also be appropriate locations for new facilities to
manage domestic and other wastes.
Policy W3: Energy recovery facilities
Opportunities for the incorporation of waste recovery and treatment facilities, where the energy
produced from biological or thermal treatment can be utilised in local schemes, should be
considered for all major new developments.
Applications for advanced thermal treatment facilities1 will be considered only where the waste
to be treated cannot practicably and reasonably be reused, recycled or processed to recover
materials and where there is provision for energy recovery and co-location with complementary
activities.
In all cases applications will be required to meet relevant design guidance and Policy W5.
1
Advanced Thermal Treatment technologies exclude conventional incineration
Justification
5.14 While the Joint Waste DPD supports, in accordance with the waste hierarchy, that
opportunities for recycling and composting are maximised before energy recovery
is considered, energy recovery facilities will play an important role in the future
management of London’s waste.
5.15 Advanced thermal treatment (or advanced conversion) technologies including
gasification, pyrolysis and anaerobic digestion provide opportunities for local
renewable energy generation supported by the Renewables Obligation Certificates
system and the Government’s Energy White Paper. The Joint Waste DPD does not
express a preference for technologies in order to maintain flexibility with regard to
emerging technologies and allow proposals to be determined on their merits. The Joint
Waste DPD supports the Defra Waste Infrastructure Delivery and New Technologies
Demonstrator Programmes in developing UK specific examples of these technologies.
5.16 As any energy recovery technology is more beneficial if both heat and electricity can
be recovered, particular attention is focussed on siting facilities in order to maximise
opportunities for Combined Heat and Power (CHP) and Combined Cooling Heat and
Power (CCHP). Potential co-location opportunities should be considered at the early
stages of planning major new developments.
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